Standard Summary Project Fiche – IPA centralised programmes
Project number 14: Project Preparation Facility
1. Basic information
1.1 CRIS Number:
2008/020-406
1.2 Title:
Project Preparation Facility
1.3 ELARG Statistical code:
01.40
1.4 Location:
Republic of Serbia
Implementing arrangements:
1.5 Contracting Authority:
EC Delegation to the Republic of Serbia
1.6 Implementing Agency:
EC Delegation to the Republic of Serbia
1.7 Beneficiary (including details of project manager):
The Beneficiary is the Ministry of Finance. The Project Manager for the Project Preparation
Facility (PPF) is Gordana Lazarevic, Assistant Minister, Sector for Programming,
Management of EU funds and Development Assistance.
The day-to-day management of the PPF will be carried out within the Sector for
Programming and Management of EU Funds and Development Assistance, in the Ministry of
Finance (DACU). DACU will be responsible for the following:
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Dissemination of information to Line Ministries and other agencies regarding how to
access the PPF
Communicating decisions regarding applications for PPF support to respective line
ministries
Providing support to Line Ministries in the preparation of terms of reference for PPF
tenders
Identifying when PPF support may be needed preferably within EU programmes funded
under IPA, but not excluding programmes and projects that could be financed by National
funds, IFIs or other donors.
Reporting on incurred and planned contracts under the PPF
A Steering Committee will be established for the project. This will be chaired by the Project
Manager and DACU will provide the Secretary. It will include additional representatives from
DACU and also representatives of key line ministries including Office of the Deputy Prime
Minister, Ministry of Infrastructure and Ministry of Environment. The Steering Committee will
meet every 6 months to review contracts carried out and planned under the PPF and to
identify additional areas of support. The Steering Committee will be required to formally
approve or reject applications from line ministries.
Financing:
1.8 Overall cost:
5,000,000 EUR
1.9 EU contribution:
5,000,000 EUR
1
1.10 Final date for contracting:
3 years after the signature of the Financing
Agreement
1.11 Final date for execution of contracts:
5 years after the signature of the Financing
Agreement
1.12 Final date for disbursements:
6 years after the signature of the Financing
Agreement
2. Overall Objective and Project Purpose
2.1 Overall Objective:
To support the Serbian Administration in the preparation and delivery of effective EU projects
in accordance with EC procedures for IPA Programming and Procurement Rules.
2.2 Project purpose:
To increase the quality of the programming process under the 2011 and 2012 IPA
programmes, as well as of the preparation of preferably IPA but possibly other projects,
through the provision of relevant support to respective Line Ministries and other agencies.
2.3 Link with AP/NPAA/EP/SAA
A key priority of the European Partnership is the permanent implementation of Public
Administration reform and improvement of efficiency and performance of the civil service with
the aim to assume complex tasks in joint work with the EU institutions and among member
countries. In that sense the key priorities of Public Administration Reform, as outlined in the
European Partnership, are to establish and strengthen the European Integration Structures,
European Integration Offices and European Integration Units within the line ministries and
enhance public awareness on EU values and democratic principles.
The Positive Feasibility report for Serbia identified the role of local authorities in attracting a
‘continuous inflow’ of Foreign Direct Investment to address the chronic under-investment in
traditional industry. A key issue in this regard is the capacity of central and local authorities to
prepare a pipeline of mature projects and efficient use of EU assistance linked with adequate
national co-funding support.
The White Paper on EU Transport Policy sets out the approach and programme for
development of the Trans European Transport Network up to 2020. It places a high priority
on achieving a shift of modal split from the current emphasis on road transport. It notes that
the inland waterways “network is reliable and economic, produces little noise or pollution,
takes up little room and has spare capacity” 1 . The PPF will provide specific support to the
Ministry of Infrastructure in order to prepare projects which meet the above.
2.4 Link with MIPD
Experience with previous CARDS assistance has shown that the future assistance under IPA
needs to ensure that the beneficiary has increased ownership of the EU programming process.
This translates into a greater involvement by the National Aid Coordinator (NAC), within the
Ministry of Finance, and the Serbian European Integration Office (SEIO) in the programming
1
EC Directorate-General for Energy and Transport: White Paper Presentation September 2001
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process. Increasingly it will mean working alongside key line ministries to develop their
capacity to participate effectively, and without external assistance, in the EU programming and
implementation process.
On one level the Project Preparation Facility supports all components of the MIPD since it is
available to all those with project fiches approved under the IPA programming cycle. It may
therefore be used to design appropriate project fiches and to develop tendering documentation
for all sectors and towards all priorities. A key role of DACU will be to ensure that responsible
line ministries are aware of the PPF and that the process for obtaining support is clear and
accessible for all.
2.5 Link with National Development Plan (where applicable)
N/A
2.6 Link with national/ sectoral investment plans (where applicable)
According to the document called “Needs Assessment of the Republic of Serbia for the period
2007-2009 programming”, coordination and monitoring implementation of international
developmental assistance is one of the highest priorities. In addition, it is expected to improve
programming of EU funds by drafting instructions for establishing priorities and defining
suggested projects, as well as assisting the relevant ministries in drafting them, and carrying
out trainings for successful programming and implementation of EU funds.
As stated in Section 2.4., this project supports project fiche where tender documentation
needs to be prepared and where the relevant Line Ministry of Agency does not have the
capacity to undertake this. Since each fiche must clearly demonstrate its linkage to national
and sectoral investment plans, this project fiche supports the achievement of strategic
objectives included in these plans also.
3.
Description of project
3.1 Background and justification:
The main objective of the Instrument for Pre-Accession Assistance (IPA) 1 is to help Serbia
face the challenges of European integration, implement the reforms needed to fulfil EU
requirements and make progress in the Stabilisation and Association Process. The IPA
instrument consists of five components; (IPA-I) Transition Assistance and Institution Building;
(IPA-II) Cross-Border Cooperation component which applies to border regions between
beneficiaries from member states, candidate states and countries in pre-accession status; (IPA
III, IV and V) Regional, Human Resources and Rural Development components which are
planned for candidate countries.
As a potential candidate country, Serbia has access to two IPA components (IPA-I) Transition
Assistance and Institution Building (IPA-II) Cross-Border Cooperation component. Under the
component IPA I Serbia can fund similar actions as under the other three components.
The European Commission is responsible for programming, contracting and implementation
of IPA. DACU, within the Ministry of Finance, in cooperation with the Serbian European
Integration Office, is the main government counterpart in the design of the IPA Programming.
The process towards full decentralisation of EU assistance by beneficiary countries is one of
the main objectives of IPA. It will be a learning process of many years for the beneficiary
countries, over the lifetime 2007/2013 of IPA.
1
Council Regulation (EC) No 1085/2006 of 17 July 2006, Official Journal L210
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The latest Enlargement process has demonstrated that devolution (de-concentration,
progressive de-centralisation) towards Commission Delegations and national administrations
of beneficiary countries of existing pre-accession instruments has been a success. It has
been an efficient way to assist beneficiary countries on their way to accession by
progressively integrating them into EU policy making processes. Furthermore beneficiary
countries are instructed to manage EU financial aid in an autonomous manner and as an
integral part of preparations for their future participation in structural funds.
Through gradual transfer of responsibilities, countries gain competence for taking full
responsibility for planning, implementation and management of EU assistance, which is
required by future Member States. The Government of Serbia will face major challenges if it
intends to achieve targets and goals identified in the European Integration process rapidly
and effectively. Meeting these challenges requires significant improvements of Governmental
institutions in order to achieve management of pre-accession funds in line with the EU quality
standards and financial regulations.
Under the Multi-Annual Indicative Financial Framework, Serbia has been allocated a total of
€540.5 million for the period 2007 – 2009 under IPA Component 1. This gradually increases
from €178.5 million in 2007 to €182.6 million by 2009. There is an expectation that this will
continue to increase year on year by a similar rate should Serbia be able to implement its
existing portfolio of projects and demonstrate sufficient capacity to implement projects which
meet the priorities of the MIPD, SAA and European Partnership and are delivered in
accordance with the various procedures.
Prior to the introduction of the IPA programming process, the responsibility for the design
and delivery of EU funded initiatives was with the EAR. This was carried out through the
preparation of sector fiches and subsequent development of specific project terms of
reference. While the EAR involved beneficiary institutions in the technical design of the
project, the preparation of much of the contractual and financial information required in the
programming process was undertaken by EAR.
The capacity within the public administration as a whole to prepare project fiches, terms of
reference and technical specifications is therefore low although there are encouraging signs
of increased understanding and capabilities in those institutions which have been involved in
the delivery of EU projects under previous CARDS projects. However, even within these
institutions there is still the need for external support to ensure appropriate procedures are
followed.
As the responsibilities for project preparation are gradually transferred from the EAR, and
subsequently the EC Delegation, the ability to produce high quality documents will increase
as a result of increased exposure to EC procedures and as a result of hands-on experience
in the implementation of projects. Without this, the ability to prepare a robust and mature
project pipeline is restricted. A purpose of this project therefore will be to prepare the
documentation for this pipeline.
A policy focus of the 2008 IPA programme is to increase the capacity of those institutions
with responsibility for the design and delivery of EU programmes, as well as those
responsible for adoption of the Acquis.
Support will therefore be provided through the Project Preparation Facility to give assistance
to Ministries and other agencies to prepare the necessary tender documentation for the full
range of contracts. As set out in the MIPD these may be in the form of “twinning/twinning
light support, technical assistance, project preparation facility, procurement of equipment,
works, investments and grant schemes”.
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The investment projects in particular require specific and technical documentation in order to
ensure projects are of an appropriate maturity to be ready to receive funding. This
documentation includes pre-feasibility studies, feasibility studies, systems design,
environmental impact analyses and the preparation of technical specifications. It is
necessary therefore to provide additional assistance to those ministries with responsibilities
for large scale works and investment projects.
In working with all Beneficiary Institutions it is necessary to design projects in such a way that
they develop institutional capacity as well as delivering specific project outputs.
3.2 Assessment of project impact, catalytic effect, sustainability and cross border
impact (where applicable)
The impact of the PPF is significant and addresses key lessons learnt from the recent
accession process. Effective delivery of the PPF results in:
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More effective implementation of the relevant programmes and projects – better designed
projects produce better results and are also less likely to require subsequent addenda
and contractual revision
Faster completion of tendering procedures – properly prepared documentation can be
approved faster by the Contracting Authority and will require less corrigenda once
launched
Higher quality responses from organisations and companies submitting bids – tender
documentation which is clear, logical and learns from experience elsewhere in the EU will
ensure that submitted offers provide what is required by the Beneficiary Institution
Increased disbursement of available funds
Improved effectiveness of projects
In addition to these results, which will be realised during the period 2010 to 2015, the project
will also increase the capacity of the Beneficiary Institutions to develop projects under future
IPA programmes and participate more effectively in Community Programmes. The skills and
knowledge in project design can equally be transferred to the design of other projects
including those financed by bi-lateral donors and those supported by the National Investment
Plan. In this regard, the catalytic effect of the project will be to improve the value for money
not only of EU funded initiatives but also those funded by other national and international
sources.
Sustainability is guaranteed by the skills development activities and the production of good
practice materials which act as templates for later projects. Sustainability is also ensured
through demonstrating how good project design leads to good project implementation. This
will encourage governmental institutions and other agencies to attach greater priority to the
programming and project design phases.
3.3 Results and measurable indicators:
1. Project fiches of the IPA 2011 and 2012 programme prepared in line with IPA template
and ready for implementation.
Indicator: Number of prepared project fiches completed in line with requested IPA funding
applications including all necessary annexes.
2. Project documentation prepared for tendering and implementation for the full range of
projects under the IPA programmes.
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Indicator: Documentation prepared is approved by EC Delegation and contracts launched in
accordance with relevant schedule.
3. Increased capacity of the beneficiary institutions to prepare and implement projects in
accordance with IPA programming process
Indicator 1: Line Ministries take on increasing responsibilities in the preparation of project
Indicator 2: Line Ministries report positively on the formal training provided and are using
skills in the development of project documentation
4. A pipeline of high quality and financially viable projects for financing by IFIs and/or other
donors developed and ready for implementation (Note: this result is less a priority than the
result 2 as the focus will be on IPA projects. Other projects can be considered only as the
second priority).
Indicator: Project documentation and feasibility studies prepared and are approved by the
Serbian Line Ministry and EC Delegation
3.4 Activities:
The Project Preparation Facility is open to all Beneficiary Institutions who are participating in
the IPA programming process or in the implementation of subsequent projects. It will be a
responsibility of DACU that all beneficiaries are aware of the PPF, its purpose and how to
access funding. The activities below may be delivered by individual project terms of reference
or terms of reference can include a number of activities.
1. Project fiches of the IPA 2011 and 2012 programmes prepared in line with IPA template
and ready for successful implementation.
Project fiches should be developed in collaboration with Line Ministries and other relevant
agencies. Support should be provided for the identification of projects and preparation of
project fiches in line with European Partnership and MIPD as the basis for IPA programmes.
In developing the fiches, clear areas of responsibility should be given to the Line Ministry so
that the fiche is developed very much as a joint project. The technical assistance should also
ensure that the EC Delegation is involved in the initial development of the fiche and is
satisfied with the scope of the project.
2. Project documentation prepared for tendering and implementation for the full range of
projects under the IPA programmes.
The activities may include:
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Preparation of technical specifications supply contracts
Preparation of designs, bills of quantities etc for works contracts
Development of grant scheme documentation – including manuals, guidelines and
procedures
Preparation of terms of reference for service contracts
Preparation of full tender dossiers including procurement notices, contract forecasts,
standard contracts, etc.
3. Increased capacity of the beneficiary institutions to prepare and implement projects in
accordance with IPA programming process
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All activities undertaken to achieve Results 1, 2 and 4 should be developed and delivered in
a way which ensures that projects are fully owned by the respective Line Ministries or
national agencies. Projects should also be developed in consultation with key stakeholders
and partners and, again, the completion of activities should help to develop longer term
linkages between stakeholders including the identification of formal roles for stakeholders in
project delivery e.g. inclusion of partners in Project Steering Committees and/or Working
Groups and inclusion in training activities.
Capacity building can be carried out through formal and informal training. Training for
relevant institutions might include: programming, project preparation and project cycle
management, EU procurement rules, monitoring and evaluation, support to preparation of
procurement planning and drafting of tender documentation (service, supply and works
contracts), evaluation of grant applications, supply and work tenders and preparation of the
project budget;
4. A pipeline of high quality and financially viable projects for financing by IFIs and/or other
donors developed and ready for implementation
Support to project preparation and design of feasibility studies for infrastructure projects that
will be financed by the IFIs, National funds and/or other donors.
Contracting Arrangement:
The project will be implemented through one service contract.
3.5 Conditionality and sequencing:
Based on previous experience, beneficiary institutions submit relatively small scale projects
which relate to the roles of specific departments and directorates. There is a general need to
upscale these projects into more integrated programmes which work across ministries to
provide a comprehensive response to identified problems. For this to occur, ministries will
need to be prepared to co-operate and to compromise. The technical assistance should
ensure that, where appropriate, project design is carried out in consultation with the full range
of stakeholders and not just the official beneficiary institution. Project terms of reference
prepared under the project should also include activities and structures which ensure interministerial collaboration during implementation.
Existing capacities of the line ministries do not match completely the adequate criteria
requested for programming of EU funded projects. Line ministries do not commit the
necessary staff which jeopardizes the programming process and development of project
fiches. Often those with experience are transferred to other roles during the gap between
projects finishing and others starting. Line Ministries will need to maintain a commitment to
increasing the capacity of their EU Directorates by retaining staff in existing positions and by
actively seeking opportunities to develop these staff through involvement in project design
actions undertaken as part of this project.
Line Ministry beneficiaries must ensure that projects supported under IPA are sustainable
and the necessary costs of maintenance are factored into budgets.
Transport investments cannot be implemented without the full commitment of government to
ensure that necessary legal and institutional pre-requisites are in place. Stronger and tighter
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quality assurance and quality control standards from local counterparts should be
established.
There are no issues of sequencing.
3.6 Linked activities
SIDA/DFID Project: “Joint Programme for Support to the Ministry of International Economic
Relations for improvement of coordination, planning, programming and implementation of
development assistance”. One of the main components of this project is support to the
programming of EU funds. Project is providing appropriate TA to Ministry of Finance (DACU)
and training for the line ministries and will last till December 2008.
CARDS 06 will provide support for Audit standards and quality and management of EU funds
through support to the Supreme Audit Institution. This activity intends to assure the use of
common international and European audit standards and the maintenance of a consistently
high quality throughout the audit process. CARDS 2006 is supporting the programming
process of IPA 2009/10 through a Project Preparation Facility. Through this project, a pool of
experts will be engaged in order to support line ministries in preparation of IPA 2009/10 Project
Fiches in line with MIPD and national strategic documents. IPA 2007 includes a 6 MEUR
Project Preparation Facility the aim of which is to support the Government in the programming
process and preparation of IPA projects. IPA PPF 2008 should be built on the experience and
potential carry-over of these two projects.
Under IPA 2007 a project to provide support to the preparation of the Decentralized
Implementation System of EU funds in the Republic of Serbia will be partly financed by
Norwegian Government. The aims of this project are the preparation of strategic and
implementation documents for implementation of DIS (this will include establishment of clear
systems and designation of institutions responsible for programming and monitoring, for
financial management, for programme implementation and for auditing of EU funded
programmes), identification and determination of necessary legal and institutional framework
and identification of possible legal changes for successful implementation of DIS and capacity
building plan for improvement of public administration capacities. Implementation of project will
start in 2006 and will last one year.
3.7 Lessons learned
The recommendations of the Evaluation of the Assistance to the Balkans under the CARDS
Reg. 2666/2000 report identified the need to increase beneficiary ownership and support
recipient institutions in Serbia to;… find their own way to fill the gaps towards EU
approximation and integration… with the aim of building a learning process in the recipient
institutions and not just providing advice and guidelines on the acquis… “there should be
specific and diversified actions to support partners’ capacity to run consultations, draft their
own visions and strategic documents, prepare projects, manage, train and motivate staff.’’.
Every new EU Member State and EU Accession State had or has problems in developing a
project pipeline capable of ensuring a steady flow of high quality projects to absorb preaccession and post-accession support, especially when new types of assistance, such as
IPA, is introduced. Serbia will also need to invest significant effort to develop an IPA project
pipeline. Efficient use of EU co-funding in a country is determined by the quality of its
strategic programming. Lessons of structural funding and pre-accession funding (Phare,
ISPA and SAPARD) highlight the importance of building the programming and management
capabilities of administrations. This capacity building involves overall programming design,
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strategic and financial management, project development, project delivery as well as
monitoring and evaluation.
While a series of institutional building actions were undertaken under CARDS, the capacities
of Serbian line ministries and state agencies remain relatively weak to meet the demands of
EU funding. The capacity for identifying and preparing projects according to EU standards is
low. Line ministries and other Government institutions involved in the IPA programming
process are facing problems with the inadequate composition of documentation related to the
preparation, implementation and monitoring of IPA programmes. Projects tend to be
prepared without a proper feasibility (cost benefit) assessment, environmental impact
assessment (when necessary) and with limited strategic positioning.
A large number of institution building projects have been completed successfully in the form of
TA and/or Twinning with the assistance of Member States experts. The experience shows that
this type of assistance has been particularly useful to meet the needs in accession process.
This IPA PPF project is targeted to provide Serbia with sufficient funds and TA support to be
able to fulfil tasks related to further strengthening of the administrative capacity for the full
implementation of the acquis.
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4. Indicative Budget (amounts in EUR)
SOURCES OF FUNDING
TOTAL EXP.RE
IB
ACTIVITIES
(1)
INV
(1)
EUR
(a)=(b)+(c)+(d)
IPA COMMUNITY
CONTRIBUTION
EUR
(b)
NATIONAL CONTRIBUTION
%(2)
Total
EUR
(c)=(x)+(y)+(z)
%
(2)
Central
EUR
(x)
Regional/
Local
EUR
(y)
PRIVATE CONTRIBUTION
IFIs
EUR
(z)
EUR
(d)
% (2)
Activity 1
contract 1.1
x
5.000.000
5.000.000
100
5.000.000
5.000.000
100
5.000.000
5.000.000
100
–
……
TOTAL IB
TOTAL INV
TOTAL PROJECT
NOTE: DO NOT MIX IB AND INV IN THE SAME ACTIVITY ROW. USE SEPARATE ROW
Amounts net of VAT
(1) In the Activity row use "X" to identify whether IB or INV
(2) Expressed in % of the Total Expenditure (column (a))
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5. Indicative Implementation Schedule (periods broken down per quarter) 2
Contracts
Contract 1.1
Start of
Tendering
T + 1Q
Signature of
contract
T +4Q
Project Completion
T+12Q
All projects should in principle be ready for tendering in the 1ST Quarter following the
signature of the FA
6. Cross cutting issues (where applicable)
Development Policy Joint Statement by the Council and the European Commission of 10
November 2000 establishes that a number of Cross-cutting Issues shall be mainstreamed
into EC development co-operation and assistance.
Cross-cutting issues will be addressed in the project so as to comply with the best EU
standards and practice in that area and in a way which demonstrates how they will be dealt
with within the project’s framework, its activities and outputs.
Cross-cutting issues will be addressed in a proactive manner, and will present a specific
component of projects (at all levels of projects' development, starting from the project
identification stage). Synergies between the projects and the objectives of will be identified
and developed. Also, the projects’ objectives and activities need to be screened in order to
ensure they won’t impact negatively on gender equality, minorities’ inclusion and
environment.
Finally, the beneficiary will make sure its objectives, policies and interventions have a
positive impact on and are in line with the main principles of gender equality, minorities’
inclusion and environment.
6.1
Equal Opportunity
Throughout the duration of the project, steps will be taken to guarantee equal opportunity of
access to project activities and benefits. Due attention will be paid to promoting the adoption
of equal opportunities in the policy areas concerned. Finally, the concept of gender
mainstreaming will be taken into account in all stages of project development so as to enable
and encourage participation of women in all areas of policy development this project will help
formulate and support.
6.2
Environment
The Environment will be considered a major cross-cutting issue in almost all segments of the
future PPF, in particular in the areas of transport infrastructure, environmental protection,
renewable energy, research & development, economic diversification of rural areas,
development of cities and cooperation – cross-border, trans-national and interregional
cooperation. Particular projects developed under this PPF will specifically be designed to
improve the environment and all projects will be designed so that, as a minimum, they do not
cause negative environmental impact.
6.3
Minorities
2 [where T=the date of the signature of the FA and xQ equals the number (x) of quarters (Q) following T].
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Issues of minority rights constitute an integral part of this project and of the overall programme.
Access to information, opportunities and support for members of national minority groups
through this project will be encouraged. Furthermore, the project will promote developing
project proposals which are related to and contribute to better integration of minorities and
promotion of inter-ethnic dialogue and tolerance. All projects will be designed so that, as a
minimum, they do not cause discriminate in any way against individuals on the basis of their
ethnicity, religion, beliefs or race.
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ANNEXES
ILog frame in Standard Format
IIAmounts contracted and Disbursed per Quarter over the full duration of Programme
III Institutional Framework – legal responsibilities and statutes
IVReference to laws, regulations and strategic documents:
Reference list of relevant laws and regulations
Reference to EP / SAA
Reference to MIPD
Reference to National Development Plan
Reference to national / sector investment plans
VDetails per EU funded contract (*) where applicable:
For TA contracts: account of tasks expected from the contractor
For twinning covenants: account of tasks expected from the team leader,
resident twinning advisor and short term experts
For grants schemes: account of components of the schemes
For investment contracts: reference list of feasibility study as well as technical
specifications and cost price schedule + section to be filled in on investment
criteria (**)
For works contracts: reference list of feasibility study for the constructing works
part of the contract as well as a section on investment criteria (**); account of
services to be carried out for the service part of the contract
(*) non standard aspects (in case of derogation to PRAG) also to be specified
(**) section on investment criteria (applicable to all infrastructure contracts and
constructing works):
•
Rate of return
•
Co financing
•
compliance with state aids provisions
•
Ownership of assets (current and after project completion)
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ANNEX I: LOGFRAME PLANNING MATRIX FOR Project Fiche
Project Preparation Facility
Contracting period expires Disbursement period:
3 years after the signature expires 6 years after the
of the Financing Agreement signature of the Financing
Agreement
Total budget :
IPA budget:
5 MEUR
5 MEUR
Overall objective
Objectively verifiable indicators
Support the Serbian Administration in the programming Establishment of project pipeline for
of the IPA programme
financing by IPA
Project purpose
Objectively verifiable indicators
Sources of Verification
Progress Report
NIPAC reports
Sources of Verification
To increase the quality of the programming process
under the 2011 and 2012 IPA programmes, as well as
of the preparation of preferably IPA but possibly other
projects, through the provision of relevant support to
respective Line Ministries and other agencies.
Results
1. Project fiches of the IPA 2011 and 2012
programme prepared in line with IPA template and
ready for the successful implementation.
Assumptions
Regular monitoring and
Projects are implemented in accordance
with the contracting schedule of the relevant assessment reports
project fiches.
IFIs Reports
Institutions are better able to diagnose their
EC Delegation reports
own needs and design projects
That individual line ministries
and key stakeholders are
committed to the programme
Quality of project fiches and approval by IPA
Committee
That there is continued
government commitment to
the accession process
Objectively verifiable indicators
ƒ All project fiches completed in line with
requested IPA funding applications
including all necessary annexes.
2. Project documentation prepared for tendering and
implementation for the full range of projects under the ƒ Documentation prepared is approved by
EC Delegation and contracts launched in
IPA programmes.
accordance with relevant schedule.
3. Increased capacity of the beneficiary institutions to
ƒ Line Ministries take on increasing
prepare and implement projects in accordance with
responsibilities in the preparation of
IPA programming process
project
4. A pipeline of high quality and financially viable
ƒ Line Ministries report positively on the
projects for financing by IFIs and/or other donors
Beneficiaries comply with
eligibility requirements
Sources of Verification
Assessment by Serbia desk
in the EC and EC Del at
end of each programming
cycle.
Assumptions
EC Delegation fully
operational
Approvals and contracts
issued by EC Delegation
National resources or loans
by IFIs available for financing
infrastructure projects
Sufficient applications for
training sessions
Consultant reports
PPF Progress reports
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developed and ready for implementation
Activities
Activity 1
1.1. Support to identification of projects and
preparation of project fiches in line with
European Partnership and MIPD as a basis for
IPA programme.
1.2. Support to preparation of necessary feasibility
studies, drafting of tender documentation
(service, supply and works contracts);
2.1. Preparation of technical specifications for supply
contracts
2.2. Preparation of terms of reference for service
contracts
2.3. Preparation of grant scheme documentation
formal training provided and are using
skills in the development of project
documentation
Immediate impact
questionnaires
ƒ Project documentation and feasibility
studies prepared.
IFIs reports
Means
Costs
1 x service contract
IPA contribution:5 million
The IPA Coordinator Office is
euro
fully functional
TA provided for preparation of PF
Training seminars
TA provided for preparation of project
documentation for IFIs funding
Assumptions
LMs remain committed to the
development of capacity in
relation to EU programming
and retain trained staff for
appropriate tasks and actively
identify opportunities for staff
development
For development of IFIs
projects strong interministerial relations
particularly between the
Ministry of Infrastructure, The
Ministry of Finance and the
Ministry of Economy
3.1. Implementation of training for the relevant
institutions in programming, project preparation
and project cycle management training, EU
procurement rules, monitoring and evaluation.
3.2. Support to preparation of procurement planning
and drafting of tender documentation (service,
supply and works contracts), evaluation of grant
applications, supply and work tenders and
preparation of the project budget.
4.1. Support to project preparation and design of
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feasibility studies and pre-feasibility studies for
infrastructure projects that will be financed by
IFIs
4.2. Preparation of EOIs, economic impact
assessments and cost-benefit analyses
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ANNEX II:
Contracted
amounts (in €) Contracted and disbursed by quarter for the project
Q1
Q2
Q3
Q4
Q5
Q6
Q7
Q8
Q9
Q10
Q11
Q12
TOTAL
Contract 1.1
5,000,000
5,000,000
Cumulated
5,000,000
5,000,000
Disbursed
Contract 1.1
500,000
1,125,000
1,125,000
1,125,000
1,125,000
5,000,000
Cumulated
500,000
1,625,000
2,750,000
3,875,000
5,000,000
5,000,000
18
ANNEX III
Description of Institutional Framework
The Ministry of Finance (DACU) is in charge of implementation and monitoring of this project. The work, mandate and authorisations of the
Ministry are regulated by the Law on Ministries (adopted on May 15, 2007 (Official Gazette of Republic of Serbia no. 48/07)) – i.e. Article 6.
Minister of Finance
State Secretaries
Independent executives
Independent Inspector
of Internal Control
Tax
Administration
Public Debt
Administration
Tobacco
Administration
Macro-economic and Fiscal
Analysis Department
Administration for
Money Laundering
Prevention
Budget Inspection and
Audit Department
Customs System and
Policy Department
Chamber of Appeals for
Infractions Procedures
19
Secretariat
Coordinator of Public
Administration Reforms
Departments
Treasury
Administration
Customs
Administration
Gaming
Administration
Foreign Currency
Inspection
Free Zones
Administration
Fiscal System Department
Department for Property
related Legal Affairs
Finance System
Department
Department for International
Financial Relations
Project Management
Department
Public Procurement
System Group
ANNEX IV
Reference list of relevant laws and regulations
•
Law on Ministries
•
Law on Budget System
•
Memorandum of Budget
•
Law on Public Debt
•
National Action Plan for Programming of IPA, etc.
Reference to AP /NPAA / EP / SAA
Key priority of the European Partnership priorities is permanent implementation of the Public
Administration reform and improvement of efficiency and performance of civil service with the
aim to assume complex tasks in joint work within EU institutions and among member
countries. In that sense key priorities of Public Administration Reform, as outlined in the
European Partnership, are to establish and strengthen the European Integration Structures,
European Integration Offices and European Integration Units within line Ministries and
enhance public awareness on EU values and democratic principles.
The Positive Feasibility report for Serbia identified the role of local authorities in attracting a
‘continuous inflow’ of Foreign Direct Investment to address the chronic under-investment in
traditional industry. A key issue in this regard is the capacity of central and local authorities to
prepare a pipeline of mature projects and efficient use of EU assistance linked with adequate
national co-funding support.
The White Paper on EU Transport Policy sets out the approach and programme for
development of the Trans European Transport Network up to 2020 It places a high priority on
achieving a shift of modal split from the current emphasis on road transport. It notes that the
inland waterways “network is reliable and economic, produces little noise or pollution, takes
up little room and has spare capacity” 1 .
Reference to MIPD
Experience with previous CARDS assistance has shown that the future assistance under IPA
needs to consider the following issues: the beneficiary must have increased ownership of the
EU programming process. This translates into a greater involvement by the Development and
Assistance Coordination Unit (DACU) of the Ministry of Finance (the National Aid Coordinator)
and the Serbian European Integration Office (SEIO) in the programming process.
A well functioning public administration is a main priority to foster democratic governance and
public service to all people in Serbia. Improving the performance of Serbia’s public
administration at all levels (governmental, parliamentary, para governmental and regulatory
bodies/structures) will be a priority of EC assistance.
It is expected that until the end of the first IPA programming cycle (2009) a reinforced capacity
for general government coordination, planning mechanisms, formulation and implementation of
policy at all levels would be achieved.
1
EC Directorate-General for Energy and Transport: White Paper Presentation September 2001
20
Strengthening the European integration structures (including line ministries and the
parliaments), as well as corresponding structures/mechanisms for the verification of the
compatibility of government policies and draft legislation with EU acquis and standards),
especially institutions dealing with Decentralized Implementation System and improve
cooperation among them.
Reference to National Development Plan
N/A
Reference to national /sectoral investment plans
According to the Document Needs Assessment of the Republic of Serbia for the period 20072009 programming, coordination and monitoring the implementation of international
developmental assistance is one of the highest priorities. In addition it is expected to improve
programming EU funds by drafting instructions for establishing priorities and defining
suggested projects, as well as assisting the relevant ministries in drafting them, as well as
carrying out training for successful programming and implementation of EU funds.
21
ANNEX V
Details per EU funded contract (*) where applicable:
Contract 1 – Service contract
The following services will be designed and delivered under Contract 1:
Prepare tender documentation for services, supplies and works contracts
Complete feasibility and pre-feasibility studies for works contracts
Complete environmental impact assessments and cost benefit analyses associated with
potential works contracts
Prepare terms of reference for service contracts
Prepare technical specifications for supply contracts
Carrying out surveys and other research – including market analysis
Capacity building
Provision of mentoring, informal and formal training to respective Line Ministry staff and other
relevant agencies in the preparation of tender documentation
Development of organizational standards of performance
Development of staff procedures
22